REPORT TO THE TWENTY-NINTH LEGISLATURE STATE OF … · 2017-02-18 · to also provide Red Hill...

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REPORT TO THE TWENTY-NINTH LEGISLATURE

STATE OF HAWAII

2017

PURSUANT TO ACT 244 SLH 2016

REQUESTING THE DEPARTMENT OF HEALTH

TO ESTABLISH A PERMANENT FUEL TANK ADVISORY COMMITTEE

TO STUDY THE ISSUES RELATED TO LEAKS OF FIELD-CONSTRUCTED

UNDERGROUND STORAGE TANKS AT RED HILL BULK FUEL STORAGE FACILITY,

AS WELL AS, FOUR (4) OTHER DOD FACILITIES

PREPARED BY:

STATE OF HAWAII

PERMANENT FUEL TANK ADVISORY COMMITTEE

DECEMBER 2016

The scope of the work prescribed in Act 244 SLH 2016 is a continuation of work from two previous task

forces that were formed per Senate Concurrent Resolution (SCR) 57 (2015) and SCR 73 (2014). The

purpose of these two groups was to gauge the impact of a 27,000-gallon fuel leak at the Red Hill Storage

Facility and to assess what efforts were being made to prevent future releases from that facility. For

additional details of those efforts please see the Department of Health Solid & Hazardous Waste

Branch’s (SHWB) website on Underground Storage Tanks (USTs) and namely the Red Hill Bulk Fuel

Storage Facility (http://health.hawaii.gov/shwb/ust-red-hill-project-main/).

During these meetings, concerns were raised regarding USTs that were constructed in-situ during the

1940s and that were still in operation seventy (70) years later. Specifically, Act 244 SLH 2016 mandates

a permanent, “advisory committee that shall study issues related to leaks of field-constructed

underground fuel storage tanks (FCTs) at the Red Hill Fuel Storage Facility, Kuahua Peninsula, Pacific

Missile Range Facility Barking Sands, Hickam Pol Annex, and Schofield barracks Military

Reservation.” A copy of this Act is attached as Appendix A.

On October 6, 2016, the Fuel Advisory Committee was assembled and the meeting was held. A court

reporter made a transcript that is available as part of this official report. Because of the size of the

document, it will be posted on the SHWB website. Also, a listing of committee members and attendees

are attached as Appendix B.

Field- Constructed Tanks (FCT) Update

Navy representatives presented a summary of active FCTs, FCTs that were recently put into temporarily

out of use (TOU) and permanently out of use (POU) status. The Navy’s PowerPoint slides are attached

as Appendix C. There were no changes from the table provided in the last report to the legislature in

December 2015 (http://health.hawaii.gov/shwb/files/2016/02/report-12.23.15.pdf). In summary, 31

FCTs are active at two locations, Red Hill and the Pacific Missile Range Facility in Kauai. Because so

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little information had changed in the year since the last update, a discussion ensued regarding the

necessity and frequency of future update meetings.

The Navy acquired many of these facilities/tanks from U.S. Air Force during the Joint Base merge in

2010, and the details regarding the source of releases and a more in-depth history of the investigations

at each site were not carried over from these original owners. It was mutually agreed upon that the Navy

needed to give more details regarding these particular sites. The suggestion was given that although

numerous reports were available to the public through DOH’s Hazard Evaluation and Emergency

Response (HEER) Office, the Navy should consolidate background information, organize it and

presented it to the group in a more comprehensive overview for the next meeting.

DOH is tentatively scheduling the next Fuel Advisory Committee meeting for the second quarter of

2017. The U.S. Air Force and the U.S. Army asked if they could be excused from future meetings since

they no longer manage any FCTs. Other than that change, the members will remain the same and will

be notified when the next date becomes secured.

Administrative Order on Consent (AOC) and Scope of Work (SOW) Update For Red Hill

Because the Red Hill Fuel Storage Facility, has its own requirement under the Administrative Order on

Consent (AOC) for separate public updates, there was a discussion as to whether it would be redundant

to also provide Red Hill updates for this Fuel Advisory Committee. Red Hill accounts for 22 of the 31

active FCTs that were in the update. This Fuel Advisory Committee spent most of the time allotted on

issues regarding updates to the Red Hill Facility and not the other FCTs.

The AOC is the enforcement agreement against the Navy with regards to investigations of and

improvements to the Red Hill Facility after a release in January 2014. There have been various scoping

meetings held addressing topics like Tank Upgrade Alternatives (TUA), Tank Inspection Repair and

Maintenance (TIRM), groundwater monitoring and modeling efforts and Risk and Vulnerability

Assessment (RVA), for example. There was also an invitation to a public meeting later that evening at

Moanalua Middle School which would serve as the public meeting required under the AOC. Work

product from these various scoping meetings and interim deliverables as required in the AOC/SOW are

available for the public at the SHWB website (http://health.hawaii.gov/shwb/ust-red-hill-project-main/).

The public was informed on October 2016, through various web announcements of a formal letter that

was sent from the regulatory agencies on September 15, 2016 to the Navy regarding their disapproval of

Section 6 & 7 Work Plan that was submitted as part of the AOC/SOW work. This letter is available at

the above website which houses all of the AOC/SOW deliverables. There was a discussion in regards to

why this letter was sent and what the consequences were for the Navy moving forward.

In regards to the completion of a revised work plan that addresses issues brought up in the ‘disapproval’

letter, Captain Epps, Commanding Officer for Fleet Logistic Center at Pearl Harbor, commented, “Our

boss, Admiral Fuller is saying we’re committed to meeting every single deadline and actually

accelerating this when given permission by the regulators.”

The Commission on Water Resource Management (CWRM) also asked questions with regards to the

latest addition of monitoring wells at Red Hill (MW 8 & MW 9) that were installed in the NW and SW

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direction from the Red Hill tanks in September 2016. They also wanted to know the schedule for MW

10 and MW 11 which are slated for installation on December 2016 and early 2017 respectively.

Update on the Federal UST Rules

EPA was asked to clarify the Federal UST rules revision which was promulgated in October 2015 and

how it would affect Red Hill and FCTs moving forward. DOH has until October 2018 to update their

UST rules to be as stringent as the Federal but they also have an ability to be more stringent if they deem

it necessary.

2016 Fuel Advisory Committee Documents Available on the SHWB UST Website

(http://health.hawaii.gov/shwb/ust-red-hill-project-main/)

• Transcripts from the court reporter

Appendices

Appendix A - Act 244 SLH 2016

Appendix B - Meeting Agenda, List of Members of the Fuel Advisory Committee & Attendees

Appendix C - PowerPoint Presentation by the Navy to Update Status of FCTs

Appendix A

GOV. MSG. NO. 1363 E X E C U T I V E C H A M B E R S

H O N O L U L U

D A V I D Y . I G E G O V E R N O R

July 12, 2016

The Honorable Ronald D. Kouchi, President and Members of the Senate

Twenty-Eighth State Legislature State Capitol, Room 409 Honolulu, Hawai'i 96813

The Honorable Joseph M. Souki, Speaker and Members of the House of Representatives

Twenty-Eighth State Legislature State Capitol, Room 431 Honolulu, Hawai'i 96813

Dear President Kouchi, Speaker Souki, and Members of the Legislature:

This is to inform you that on July 12, 201 6, the following bill was signed into law:

HB2646 HD2 SD2 CD1 RELATING TO ENVIRONMENTAL PROTECTION ACT 244 (1 6)

Sincerely,

kg+ DAVID Y. IG

Governor, State of Hawai'i

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2646 ACT 244 H.B. NO. H.D.~

ORIGINAL ~pproved by the Governor JUL 1 2 2016'

HOUSE OF REPRESENTATIVES

STATE OF HAWAII S.D. 2 C.D. 1

T i l

TWENTY-EIGHTH LEGISLATURE, 2016

A BILL FOR AN ACT RELATING TO ENVIRONMENTAL PROTECTION.

BE IT ENACTED BY THE LEGISLATURE OF THE. STATE OF HAWAII:

SECTION 1. The legislature finds that protecting the

environment and underground sources of drinking water is in the

best interest of public health and safety and required under

article XI, section 7 , of the state constitution.

The legislature also finds that since 2005, petroleum

chemical contaminants have been detected in the groundwater and

rocks beneath the United States Department of the Navy's Red

Hill Bulk Fuel Storage Facility fuel tanks. In January 2014,

the facility's tank number five released twenty-seven thousand

gallons of fuel into underground rocks and groundwater. The

current location of the released fuel is unknown.

The Red Hill Bulk Fuel Storage Facility fuel tanks have

been corroding for more than seventy years. The corrosion has

caused significant thinning of the steel tank walls and, in some

cases, has fully penetrated the steel. The ongoing corrosion

damages the steel walls of the fuel tanks, as well as the steel

reinforcement in the surrounding concrete, and can lead to more

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frequent and larger fuel releases than have occurred in the

past.

The legislature further finds that the installation of

monitor wells is crucial to test groundwater underneath and

surrounding the Red Hill Bulk Fuel Storage Facility to protect

Oahu's fresh water supply. While it should be the duty of the

United States Navy to fund efforts to monitor and remediate fuel

leaking from the Red Hill Bulk Fuel Storage Facility, the

protection of Oahu's drinking water supply is of such critical

importance to the health and safety of the people of Hawaii that

as a first step, the local board of water supply is funding the

installation of two test wells in the area. The State is also

funding two test wells in the area, and the people of Hawaii are

waiting for the United States Navy to provide funding for at

least four additional wells.

The purpose of this Act is to protect public health by

establishing a permanent. fuel tank advisory committee.

SECTION 2. Chapter 342L, Hawaii Revised Statutes, is

amended by adding a new part to be appropriately designated and

to read as follows:

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PART . FUEL TANK ADVISORY COMMITTEE

S342L- Fuel tank advisory committee; established;

composition. (a) There is established in the department of

health the fuel tank advisory committee, which shall consist of

up to fourteen ex officio members and at least two public

The ex officio members of the committee shall be:

The director of health, who shall serve as the

committee’s chair;

The four members of Hawaii’s congressional delegation,

or their designees;

The president of the Hawaii senate, or a senator

appointed by the president of the senate;

The speaker of the Hawaii house of representatives, or

a representative appointed by the speaker of the

house ;

The chairperson of the board of land and natural

resources, or the chairperson’s designee;

The chairperson of the board of water supply of a

county with a population of five hundred thousand or

more, or the chairperson’s designee; and

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(7) The chairperson of the commission on water resource

management, or the chairperson's designee.

(c) The following persons shall be invited to participate

on the advisory committee as ex officio members:

(1) The Commanding General of the United States Army,

Pacific, or the Commanding General's designee;

( 2 ) The Commander of the Pacific Fleet of the United J

States Navy, or the Commander's designee;

(3) The Commander of the Pacific Air Forces, or the

Commander's designee; and

( 4 ) A representative from the United States Environmental

Protection Agency, or the representative's designee.

(d) The governor shall appoint at least two public members

from the community at large in accordance with section 26-34;

provided that the advice and consent of the senate shall not be

necessary.

(e) The public members of the advisory committee shall

receive.no salary, but shall be entitled to reimbursement for

necessary expenses, including travel expenses.

20 S342L- Duties. (a) The advisory committee shall study

21 issues related to leaks of field-constructed underground fuel

HB2646 CD1 HMS 2016-3565 4

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storage tanks at the Red Hill Bulk Fuel Storage Facility, Kuahua

Peninsula, Pacific Missile Range Facility Barking Sands, Hickam

Pol Annex, and Schofield Barracks Military Reservation. The

advisory committee shall consider:

(1) The short- and long-term effects of leaks of the fuel

tanks, including effects relating to the health of

residents, safe drinking water, and the environment;

(2) Response strategies to mitigate the effects of leaks

from fuel tanks;

(3) Methods to improve communication between the United

States Navy, Air Force, and Army; the State; any local

board of water supply; and the public in the event of

a leak of any fuel tank;

(4 ) Groundwater test results in relation to the

surrounding areas of fuel tank facilities, with a

particular emphasis on the groundwater near the Red

Hill Bulk Fuel Storage Facility;

( 5 ) The implications of shutting down any fuel tank

facility; and

HB2646 CD1 HMS 2016-3565 5

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C.D. 1

(61 Updates on progress toward meeting goals of agreement

between the State, the affected county, and the

federal government.

No later than twenty days before the convening of each

regular session, the advisory committee shall submit a report of

(b)

its findings, including groundwater test results, and

recommendations, including any proposed legislation, to the

legislature. I'

SECTION 3. (a) All rights, powers, functions, and duties

of the task force to study fuel tank leaks initially created

pursuant to senate concurrent resolution no. 73, H.D. 1, regular

session of 2014, and expanded by senate concurrent resolution

no. 57, H.'D. 1, regular session of 2 0 1 5 , are transferred to the

fuel tank advisory committee established pursuant to this Act.

(b) All records, equipment, machines, files, supplies,

contracts, books, papers, documents, maps, and other personal

property heretofore made, used, acquired, or held by the task

force to study fuel tank leaks relating to the functions

transferred to the fuel tank advisory committee established

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2 which they relate.

3 SECTION 4. This Act shall take effect on July 1, 2016.

pursuant to this Act shall be transferred with the functions to

APPROVED this 1 2 day of JUL , 2016

- GOVERNOR OF THE STATE OF HAWAII

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Appendix B

Fuel Advisory Committee – FCT update Thursday, October 6, 2016

9:30 a.m. to 12 p.m.

919 Ala Moana Boulevard, 5th Floor Honolulu, HI 96814

AGENDA

1. Call to Order

2. Welcome & Introductions – Keith Kawaoka, Deputy Director of Health, SOH

a. Congressional Delegationb. State Legislaturec. Department of Defensed. SMEse. Public Members

3. Purpose of Fuel Advisory Committeea. Short- and long- term effects of leaksb. Response strategies to mitigate the effects of leaksc. Method to improve communication between the US Navy, Air Force, and Army; the State;

any local board of water supply; and the public in the event of a leakd. Groundwater test results in relation to the surrounding areas of fuel tank facilitiese. Implications of shutting down any fuel tank facilityf. Updates on progress towards meeting goals of agreement between the State, the

affected county, and the federal government

4. Presentations by DOD Representatives (if provided)a. Armyb. Air Forcec. Navy

5. Next Update & Schedule for report to the legislature by DOH

6. Adjournment

Red Hill Task Force Members

1. Keith Kawaoka, Deputy Director, Department of Health

2. Congressional District 1, Cynthia Rezentes

3. Hirono’s Office, TBD (previously Alan Yamamoto)

4. Gabbard’s Office, Ryan Joslin, Military Affairs Liaison

5. Captain Kenneth W. Epps, NAVSUP FLC Hawaii

a. Captain Hayes

6. Army Hawaii, Sally Pfenning, Director of Public Works

7. Air Force Hawaii, TBD

8. Senator Glenn Wakai, Chair, Energy/Environment Committee

9. Representative Chris Lee, Energy/Environmental Committee

10. Steven Linder, EPA Region IX

11. Ernest Lau, P.E., Honolulu Board of Water Supply

12. Patrick Casey, Commission on Water Resource Management

13. Patrick Casey, Department of Land & Natural Resources

14. Steven Onoue, President, Moanalua Valley Community Association (pending)

15. David Yomes, Chair Aliamanu/Salt Lake Neighborhood Board (pending)

Schatz’s Office, Dale Hahn (not official member)

Underground Storage Tank Program Website http://health.hawaii.gov/shwb/underground-storage-tanks/

Red Hill Website http://health.hawaii.gov/shwb/ust-red-hill-project-main/

Keith Kawaoka Deputy Director of Environmental Health Department of Health

Captain Rich Hayes Commanding Officer NAVFAC Hawaii

Captain Ken Epps Commanding Officer FLCPH

Senator Glenn Wakai Chair, Energy/Environmental Committee Hawaii State Senator

Rep Chris Lee Energy/Environmental Committee Hawaii State Representative

Steven Linder Manager, UST Program Environmental Protecion Agency Region IX

Ernest Lau Program Manager Honolulu Board of Water Supply

Patrick Casey Geologist DLNR/Comission on Water Resource Management (CWRM)

Steven Ononue President Moanalua Valley Community Assoication

David Yomes Chair Salt Lake/Aliamanu/Foster Village Neighborhood Board NB#18

Cynthia Rezentes designee for 1st Congressional Seat/formerly Takai

Ryan Joslin designee for Representative Tulsi Gabbard

Kehau Yap designee for Senator Mazie Hirono

Dale Hahn designee for Senator Brian Schatz

designee for Air Force

Sally Pfenning designee for Army

Stuart Yamada Chief, Environmental Management Division Department of Health

Steven Chang Chief, Solid and Hazardous Waste Branch Department of Health

Roxanne Kwan Supervisor, Underground Storage Tank Section Department of Health

Thu Perry Public Participation Coordinator, UST Section Department of Health

Joanna Seto Chief, Safe Drinking Water Branch Department of Health

Grace Simmons Supervisor, Hazardous Waste Section Department of Health

Jenny Bernier LUST Project Officer Department of Health

Aaron Poentis NAVFAC Hawaii

Jimmy Miyamoto Navy

Drew Lovegren NAVSUP FLCPH

Tom Clements Navy

Danae Smith DLA

John Floyd FLC

Kathy Isobe Navy

Raelynn Kishaba NAVFAC Hawaii

Red Hill Fuel Advisory Committee

Task Force Members (not present/RED)

DOH

Navy

Richard Hayes NAVFAC Hawaii

Rowdy Griffin DLA

Bob Pallerino EPA Region IX

Omer Shalev EPA Region IX

Dean Higuchi EPA - local contact

Ronald Chinn EPA Consultant Innovex

Josh Michaels Congressional District 1/formerly Takai

Carrie Nelson Army

Eliza Wilcox Office of Senator Thielin

Erwin Kawata Honolulu Board of Water Supply

Jim Joseph BWS Consultant Intera

Bill Linderfelt BWS Consultant Intera

John Sigda BWS Consultant Intera

Brian McDonald BWS Consultant Exponent

Larry Eiselstein BWS Consultant Exponent

Joseph Tracy BWS Consultant Intera

Thomas Stewart BWS Consultant Mott-Smith Consultants

Kathleen Pahinni Honolulu Board of Water Supply

Marti Townsend Sierra Club

Sophie Cocke Star-Advertiser

Cynthia Murphy court reporter Rosenberg Court Reporters

Board of Water Supply

Media

EPA

Other Government

Appendix C

Supporting the Fleet, Fighter, Family in HawaiiSupporting the Fleet, Fighter, Family in Hawaii

Navy Region HawaiiSenate Task Force MeetingFuel Advisory Committee

FIELD CONSTRUCTED TANKS

October 6, 2016

CAPT Richard Hayes III - Regional Engineer, Navy Region Hawaii

CAPT Ken Epps – Commanding Officer, Fleet Logistics Center, Pearl Harbor


Field Constructed TanksActive as of October 2016

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Location Status Qty Capacity of each tank (gallons)

Composition Installation Date Over Drinking Water Resource

NOTES

Kipapa GulchFuel Storage

Annex- Hickam Air Force

Base- Wheeler Air Force

Base

POU* 4 2,650,000 Bare Steel May 1941 Yes DOH Office of Hazard Evaluation

& Emergency Response is overseeing remediation

(bioventing) for a release

Red Hill Facility TOU* 2 12,700,000 Bare Steel, encased in concrete

May 1941 Yes

Red Hill Facility In use 18 12,700,000 Bare Steel, encased in concrete

May 1941-1943 Yes DOH Office of Solid & Hazardous Waste

Branch is responding to a

release from Tank 5Kuahua Pennisula –

Submarine BasePearl Harbor

TOU* 3 20,000 Concrete 1941 No DOH HEER Office is overseeing efforts

Kuahua Pennisula –Submarine Base

Pearl Harbor

TOU* 5 94,000 Concrete 1941 No DOH HEER Office is overseeing efforts

Kuahua Pennisula –Submarine Base

Pearl Harbor

In use 4 425,000 Bare Steel June 1942 No Surge tanks used at Red Hill Facility

Pacific Missile Range In use 9 50,000 Cathodically Protected Steel

April 1942 No

Hickam POL AnnexWaikakalaua

- Hickam Air ForceBase

- Wheeler Air ForceBase

POU 9 1,765,000 Field Constructed Concrete Encased Steel

May 1941 Yes DOH HEER Office is overseeing remediation (bioventing) for a release

TOTAL In use 31TOU/POU* 23

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• Active FieldConstructed TanksOperating on Oahu

• Green color representsthe Drinking WaterAquifers

Oahu Field Constructed Tanks

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MAP: Map Hawaii Department of Health Safe Drinking Water Branch (2016)

Red Hill Bulk Storage FacilityKuahua Peninsula

(SUBASE)


Red Hill Bulk Fuel Storage Facility

• Eighteen (18) active tanks – 12.5Mgallons each

• Two (2) tanks temporarily out of use• Steel-lined concrete tanks, surrounded

by basalt rock.• Installed between 1940 – 1943• State-of-the-art inventory management

system• Subject to Modified API 653 Inspections

• 20-year suitability inspection• Next inspection 2017 - 2028

• Leak Detection• Tank Tightness Tests completed for

all tanks within last 12 months• Complies with Federal regulations

• National Historic Civil EngineeringLandmark

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Diameter100 Feet

Height

UpperTunnel

LowerTunnel

Fuel Tank

250 Feet


Kuahua PeninsulaRed Hill Surge Tanks

• Four active tanks – 300K gallons each• Intermediate transfer point for fuel• Normally empty – emergency storage• Bare steel encased in concrete• Installed in June 1942• Subject to Modified API 653 Inspections

• Last done between 2004 – 2006• 20-year suitability inspection• Next inspection 2024 – 2026

• Leak Detection• Tank Tightness Tests completed in

December 2015 and February 2016• No reported releases• Not over Drinking Water Aquifer

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Kuahua PeninsulaFormer Diesel Purification Plant

• Three Tanks – 25K gallons each• Five Tanks – 100K gallons each• Tanks are empty• Concrete• Installed in 1941• Temporarily out of use (last used in 1990)• Included in the 1997 Naval Base Subsurface Oil Remedial Investigation

• Evidence of fuel release• Recoverable free product removed• Monitoring indicates plume stable• State DOH approved action in 2010

• Demolition and removal actions starting in July 2016• Not over Drinking Water Aquifer

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Kauai Field Constructed Tanks

• Active FieldConstructed TanksOperating on Kauai

• Green color representsthe Drinking WaterAquifers

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MAP: Map Hawaii Department of Health Safe Drinking Water Branch (2016)

Pacific Missile Range Facility


Pacific Missile Range FacilityFuel Farm

• Nine active tanks – 50K gallons each• Store Jet A• Welded Steel• Installed in April 1942• Subject to Modified API 653 Inspections

• Last done between 2011 – 2012• 10-year suitability inspection• Next inspection 2021 – 2022

• Leak Detection• Monthly static leak test

• No reported releases• Not over Drinking Water Aquifer

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QUESTIONS?

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BACKUP

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AOC STATUS

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State Task Force Report (Dec 2014)

• List of Field ConstructedTanks (Appendix E of the2014 Senate Task ForceReport) provided by StateDepartment of Health

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Field Constructed TanksNavy Update - October 2015

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Former Storage Facility Supported Hickam and Wheeler Air Force Base

Deleted as not Field Constructed Tank

DOH HEER – Department of Health Hazard Evaluation & Emergency Response

Tanks for Red Hill Task Force discussion (as per SDOH)


Revised Field Constructed Tanks Oahu MapNavy Update - October 2015

• Oahu Field Constructed Tanks• Red Hill – In Use• Kuahua Peninsula

(Red Hill Surge Tank) – In Use

• Kuahua Peninsula (Former Diesel Purification Plant) –Temporarily Out of Use

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Facility: Waikakalaua Fuel Storage AnnexTanks: 9Status: Permanently out of serviceCapacity: Active – 0; Inactive 1.75 million gal.Fuel: JP-4, JP-8


State Task Force Report (Dec 2014)

• Kauai Field Constructed Tanks• Pacific Missile

Range Facility –In Use

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